The European Union expects Serbia to significantly accelerate reforms in the rule of law, ensure the consistent implementation of media legislation, and fully apply the new rules on the Unified Electoral Roll, according to a draft of the EU Council conclusions on Serbia and the enlargement policy, reported by Serbia’s public broadcaster RTS.
The draft recalls the European Commission’s assessment that Serbia is technically ready to open Negotiation Cluster 3 (Competition and Inclusive Growth), but stresses that EU ministers will revisit the issue later. No date is given for when the cluster may open.
EU member states will take up the issue again only once Serbia demonstrates additional progress—especially in the rule of law and in normalizing relations with Prishtina—based on the 2025 Progress Report.
The draft, which may still be amended before adoption, urges Serbia to reduce political tensions and address the “deep polarization” in the country. It expresses regret over backsliding in freedom of expression and media, calling for concrete and tangible reforms in the rule of law.
Although the text acknowledges that EU integration remains Serbia’s “strategic interest,” it underscores that Belgrade must demonstrate this “in words and actions”, showing strong political will and consistent implementation of reforms, and communicate objectively and unambiguously about the EU.
Media Freedom, Protests, and Use of Force
EU ministers noted that Serbia recently saw mass protests following the collapse of a roof structure at the Novi Sad railway station.
While freedom of assembly is generally respected, the Council emphasizes the need to strengthen guarantees and ensure the safety of journalists. Reports of violence and excessive use of force by police during protests require a thorough and impartial investigation.
The EU calls on Serbia to de-escalate tensions and address polarization through inclusive dialogue involving all stakeholders, including civil society.
The text expresses deep concern about declining media freedom, stressing the importance of safeguarding fundamental rights, including minority rights. It welcomes the adoption of new media laws but insists that they must be implemented “in letter and in spirit”—a point often criticized by EU observers who argue that President Aleksandar Vučić’s government routinely adopts reforms on paper while undermining them in practice.
Serbia is urged to quickly complete appointments to the REM media regulator and actively counter disinformation and foreign influence operations. It must also create a genuinely enabling environment for civil society, independent media, and academic freedoms—areas where the government has faced persistent criticism for pressure and intimidation tactics.
Judiciary, Corruption, and Elections
The EU Council stresses that there has been no progress in the judiciary and only “limited” progress against corruption and organized crime.
The EU welcomes amendments to the law on the Unified Electoral Roll but stresses the need for proper implementation, especially through systematic revision of the voter registry—another area where Brussels has repeatedly warned that Vučić’s administration uses legal loopholes to maintain electoral control.
Serbia is strongly encouraged to adopt all remaining ODIHR and Council of Europe recommendations on the electoral process.
Dialogue with Prishtina and Regional Security
On the Belgrade–Prishtina dialogue, the Council reiterates that progress for both parties depends on the full implementation of the Agreement on the Path to Normalization and the Ohrid Implementation Annex, as well as all previous agreements—“without delay or preconditions.”
The EU expects Serbia to begin recognizing Kosovo’s documents and symbols in line with the 2023 agreement and to refrain from opposing Kosovo’s membership in any international organization—something Vučić has persistently resisted despite formal commitments.
The draft calls for a coordinated and transparent solution regarding Serbian-funded structures in Kosovo (education, healthcare, etc.) and stresses the need for full reintegration of Kosovo Serbs into Prishtina’s institutions, including judiciary and police.
The Council expresses deep concern that Serbia still has not fulfilled expectations regarding accountability for the armed attack on Kosovo police in Banjska in September 2023—an incident widely interpreted in the EU as being linked to Serbian state or security structures.
Security Risks and Alignment with EU Foreign Policy
The EU is also alarmed by Serbia issuing Serbian passports to Russian citizens through accelerated procedures, describing this as a potential security threat for the Union.
The Council welcomes Serbia’s recent increase in alignment with EU foreign policy but stresses that the expectation is for Serbia to fully align, particularly with sanctions against Russia and Belarus—an area where Vučić continues to resist for political reasons and due to ties with Moscow.
Serbia must refrain from statements and actions that contradict EU positions on foreign policy and strategic issues.
The EU welcomes Serbia’s humanitarian assistance to Ukraine and calls on Belgrade to help prevent the circumvention of EU sanctions.
Economic Criteria
The EU acknowledges Serbia’s good level of preparedness in economic criteria and the functioning of a market economy. It calls on Serbia to continue strengthening competitiveness and proceed with structural reforms
